從土地開發利用行政特徵建構程序上人民參與形式之選擇原則

Principles for Determining Appropriate forms of the People Participation According to the Administrative Features Establishing Procedures Related to Land Development and Utilization

國家行政與人民之間對話，為正當法律程序不可或缺的內涵，亦為落實憲法保障人權的核心。惟何種土地開發利用案件需要何種人民參與形式，至今仍為未解之問題。爰本文目的在建構土地開發利用行政程序人民參與形式之選擇原則，以提供未來立法政策形成及行政機關在行政作業實務上一個較明確之操作原則。首先，從非都市土地開發許可、土地徵收及都市計畫定期通盤檢討等土地開發利用行政，分析歸納其中具有人民參與關聯的特徵。其次，就各種行政特徵指出其對人民參與的需求，並建構人民參與形式之選擇原則。再，以轉化後比例原則求取較適合之人民參與形式。最後，再以中科四期開發許可案實際操作驗證。結果認為中科四期開發許可案在應然面，較適合之人民參與形式為聽證，但實然卻以行政機關內部會議讓人民參與，即中科四期開發許可程序根本沒有人民參與形式讓利害關係人陳述意見，此應然面與實然面之重大落差，顯與正當法律程序原則之內涵悖離。爰建議主管機關參考本文所建構之人民參與形式選擇原則，檢討設計符合正當行政程序要求之人民參與形式，以落實憲法保障人權之意旨。 Central to the constitutional protection of human rights, dialogue between state administration and the people is an indispensable component of the due process of law. However, some questions, such as determining the cases of land development and utilization in which people should participate and the forms through which people should participate, remain unaddressed. The purpose of this study was to establish principles for determining the form of people participation in administrative procedures related to land development and utilization and to provide clearly defined principles for practical operation in future legislative policy-making and administrative agencies. First, administrations related to land development and utilization, including non-urban land development permits, land acquisition, and urban planning, were comprehensively reviewed periodically to analyze and summarize the features associated with people's participation. Second, the summarized administrative features were linked to people's need for participation, subsequently establishing principles for determining the form of people participation. Third, appropriate forms of people participation were determined according to the principle of proportionality. Finally, the principles were verified using the case of the Zhongke Development Project, fourth phase. The results suggested that concerning the fourth phase of the Zhongke Project, conceptually, a public hearing would be the most appropriate form of people participation; however, practically, the most appropriate form is permitting people to participate in internal meetings of the administrative agencies. In other words, the approval procedure for the fourth phases of the Zhongke Development Project did not provide any forms of people participation to allow interested parties to express their opinions, resulting in an enormous chasm between ideal and actual practice that represents a deviation from the meaning of the due process of law. Therefore, we recommend that competent authorities refer to the principles established in this study to review and design a form of people participation that conforms to the requirements of administrative procedures, thereby implementing the principles of the constitutional protection of human rights.

Central to the constitutional protection of human rights, dialogue between state administration and the people is an indispensable component of the due process of law. However, some questions, such as determining the cases of land development and utilization in which people should participate and the forms through which people should participate, remain unaddressed. The purpose of this study was to establish principles for determining the form of people participation in administrative procedures related to land development and utilization and to provide clearly defined principles for practical operation in future legislative policy-making and administrative agencies. First, administrations related to land development and utilization, including non-urban land development permits, land acquisition, and urban planning, were comprehensively reviewed periodically to analyze and summarize the features associated with people's participation. Second, the summarized administrative features were linked to people's need for participation, subsequently establishing principles for determining the form of people participation. Third, appropriate forms of people participation were determined according to the principle of proportionality. Finally, the principles were verified using the case of the Zhongke Development Project, fourth phase. The results suggested that concerning the fourth phase of the Zhongke Project, conceptually, a public hearing would be the most appropriate form of people participation; however, practically, the most appropriate form is permitting people to participate in internal meetings of the administrative agencies. In other words, the approval procedure for the fourth phases of the Zhongke Development Project did not provide any forms of people participation to allow interested parties to express their opinions, resulting in an enormous chasm between ideal and actual practice that represents a deviation from the meaning of the due process of law. Therefore, we recommend that competent authorities refer to the principles established in this study to review and design a form of people participation that conforms to the requirements of administrative procedures, thereby implementing the principles of the constitutional protection of human rights.